United Nations Peacekeeping: Issues for Congress

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1 Order Code RL33700 United Nations Peacekeeping: Issues for Congress Updated August 5, 2008 Marjorie Ann Browne Specialist in International Relations Foreign Affairs, Defense, and Trade Division

2 United Nations Peacekeeping: Issues for Congress Summary A major issue facing the United Nations, the United States, and the 110 th Congress is the extent to which the United Nations has the capacity to restore or keep the peace in the changing world environment. Associated with this issue is the expressed need for a reliable source of funding and other resources for peacekeeping and improved efficiencies of operation. For the United States, major congressional considerations on U.N. peacekeeping stem from executive branch commitments made in the U.N. Security Council. The concern with these commitments, made through votes in the Council, is the extent to which they bind the United States to fund and to participate in some way in an operation. This includes placing U.S. military personnel under the control of foreign commanders. Peacekeeping has come to constitute more than just the placement of military forces into a cease-fire situation with the consent of all the parties. Military peacekeepers may be disarming or seizing weapons, aggressively protecting humanitarian assistance, and clearing land mines. Peacekeeping operations also now involve more non-military personnel and tasks such as maintaining law and order, election monitoring, and human rights monitoring. Proposals for strengthening U.N. peacekeeping and other aspects of U.N. peace and security capacities have been adopted in the United Nations, by the U.S. executive branch, and by Congress. Some are being implemented. Most authorities have agreed that if the United Nations is to be responsive to 21 st century world challenges, both U.N. member states and the appropriate U.N. organs will have to continue to improve U.N. structures and procedures in the peace and security area. This report serves as a tracking report for action by Congress on United Nations peacekeeping.

3 Contents Most Recent Developments...1 Introduction...1 Current Funding Situation...3 Fiscal Year Fiscal Year Fiscal Year 2007 Supplemental...7 Fiscal Year U.N. Peacekeeping: Funding Assessed Contributions FY2007-FY The Peacekeeping Assessment Cap...10 Notifications to Congress...13 Basic Information...14 U.S. Provision of Personnel...16 Other Peacekeeping Issues...18 A Peacekeeping Response to International Humanitarian Distress...18 The Role of U.N. Peacekeeping in Monitoring Elections...19 U.S. Financing for U.N. Peacekeeping...20 U.N. Proposals for Strengthening Peacekeeping...21 Agenda for Peace (1992)...21 Brahimi Panel Report (2000)...23 Prince Zeid Report (2005)...24 Reorganization and Restructuring (2007)...27 The United States and Peacekeeping Proposals...28 Congress and United Nations Peacekeeping: Overview...30 List of Tables Table 1. U.N. Peacekeeping-Assessed Contributions FY2007 Allocations and FY2008 and FY2009 Requests...9 Table 2. U.N. Peacekeeping Assessment Levels for the United States, Calendar Years Table 3. U.S. Military Personnel Under U.N. Control as of November 30, Table 4. U.S. Personnel Under U.N. Control as of June 30, Table 5. U.S. Contributions to U.N. Peacekeeping as Requested and Enacted, FY1988-FY Appendix A. U.N. Peacekeeping Operations: A Chronological List...38 Appendix B. U.N. Peacekeeping Operations: Numbers Created Annually,

4 Appendix C. United Nations Peacekeeping over the Years: Statistical Data for Comparative Analysis, Appendix D. U.N. Peacekeeping: Status of U.S. Assessed Contributions for Calendar Year Appendix E. U.N. Peacekeeping: Status of U.S. Assessed Contributions for Calendar Year Appendix F. U.N. Peacekeeping: Status of U.S. Assessed Contributions for Calendar Year

5 United Nations Peacekeeping: Issues for Congress Most Recent Developments On February 4, 2008, the President, in his budget for FY2009, requested $1,497,000,000 for U.S. contributions to U.N. peacekeeping operation assessed accounts in the Contributions to International Peacekeeping Activities (CIPA) account, Department of State. He requested $247,200,000 in voluntary contributions for the FY2009 Peacekeeping Operations (PKO) account. He also requested authority to pay up to 27.1% in contributions for any U.N. peacekeeping operation assessments received from calendar years 2005 through On May 2, 2008, the President sent Congress an amendment to his FY2009 budget, requesting for the PKO account an additional $60 million, to fund U.S. assistance to international efforts to monitor and maintain peace in Somalia and Democratic Republic of Congo. This brings the FY2009 PKO request to $307,200,000. On June 30, 2008, the President signed H.R. 2642, the Supplemental Appropriations Act, 2008 (P.L ), which included supplemental funding for U.S. contributions to U.N. peacekeeping accounts in the Contributions to International Peacekeeping Activities (CIPA) account, Department of State, for both FY2008 and FY2009 and supplemental funding for the Peacekeeping Operations (PKO) account for FY2009. On July 18, 2008, the Senate Committee on Appropriations reported S. 3288, the Department of State, Foreign Operations, and Related Programs Appropriations bill, The committee provided $1,650,000,000 for the CIPA account and $257,200,000 to the PKO account. The committee also recommended raising the peacekeeping assessments cap from 25% to 27.1% for assessments received during CY2005 through On July 16, 2008, the State and Foreign Operations Subcommittee of the House Appropriations Committee approved its FY2009 bill, which will now be considered by the full committee. The text of a bill is not yet available. Introduction The role of the United Nations in facilitating dispute settlement and establishing peacekeeping operations to monitor cease-fires and participate in other duties as assigned by the U.N. Security Council increased markedly in the 1990s. Between April 1988 and April 1994, a total of 20 peacekeeping operations were set up,

6 CRS-2 involving 16 different situations. Since May 1994, however, the pace of Council creation of new U.N. controlled peacekeeping operations dropped noticeably. This reduction resulted, in part, from the U.S. decision, in Presidential Decision Directive 25 (PDD 25), signed May 1994, to follow strict criteria for determining its support for an operation. 1 This U.S. decision was accompanied by a Security Council statement adopting similar criteria. If the trends between 1978 and 2007 (see Appendix C) and situations at the start of 1988 and in more recent years are compared, the following trends emerge:! Numbers of Operations: As of the end of 1978, six U.N. peacekeeping operations existed. No operations were created between the start of UNIFIL in March 1978 and April The number of operations increased from 8 in 1970 to 17 in 1993 and 1994, 16 in 1995 and 1996, and 17 again in Since 2000, the number of operations as of the end of the year has fluctuated between 15 and 16. As of December 31, 2007, there were 17 U.N. peacekeeping operations.! U.N. Costs: For calendar year 1978, U.N. peacekeeping expenditures totaled $202 million and were up to $635 million for This went up to $1.7 billion for 1992 and to $3 billion annually for 1993, 1994, and The total for 1996 went down to $1.4 billion and below $1 billion for Since 2000, U.N. peacekeeping costs were, annually, over $2 billion, reaching $3.6 billion in 2004 and $4.7 billion for ! U.N. Personnel: As of December 31, 1978, personnel in U.N. peacekeeping operations totaled 16,700. The highest number during 1993 was 78,500, but the total was down to 68,900 in In 1996, the highest number was down to 29,100 and 14,600 in For 2000, the highest number was 38,500 and climbing. For 2004, 64,700 was the highest number and at the end of 2005, the number in U.N. peacekeeping operations totaled 70,103. As of December 31, 2007, the number of uniformed personnel in U.N. peacekeeping operations totaled 84,309.! U.S. contributions for assessed peacekeeping accounts: For CY1988, U.S. assessed contributions totaled $36.7 million. CY1994 U.S. payments to U.N. peacekeeping accounts were $991.4 million; and $359 million in CY1996. U.S. assessed contributions totaled $518.6 million in CY2000 but were up to $1.3 billion, including arrears payments, in CY2001. U.S. contributions were $ See text at [ 2 These figures are taken from Peacekeeping Operations Expenditures: , a table compiled by Michael Renner (Senior Researcher, Worldwatch Institute and Global Policy Forum), found at [

7 CRS-3 million in CY2003, $1.1 billion in CY2005, and $1.1 billion in CY2006.! U.S. Personnel in U.N. Peacekeeping: When 1988 started, the U.S. military participated, as observers, in one U.N. operation, the U.N. Truce Supervision Organization in Palestine (36 officers). As of December 31, 1995, a total of 2,851 U.S. military personnel served under U.N. control in seven operations. As of December 31, 2003, 518 U.S. personnel served in seven operations and as of the end of 2004, 429 U.S. personnel served in seven operations. As of December 31, 2007, 316 U.S. personnel served in seven operations. Fiscal Year 2009 Current Funding Situation On February 4, 2008, the President, in his budget for FY2009, requested $1,497,000,000 for U.S. contributions to U.N. peacekeeping operation assessed accounts in the Contributions to International Peacekeeping Activities account (CIPA). This included $31,000,000 for U.S.-assessed contributions to the two war crimes tribunals (Yugoslavia and Rwanda) that are not peacekeeping operations. Bush also requested $247,200,000 for the FY2009 Peacekeeping Operations (PKO) account. This account finances, inter alia, U.S. contributions to the Multilateral Force and Observers (MFO), a non-u.n. peacekeeping operation, and other U.S. support of regional and international peacekeeping efforts. The MFO implements and monitors the provisions of the Egyptian-Israeli peace treaty of 1979 and its 1981 protocol, in the Sinai. On May 2, 2008, the President sent Congress an amendment to his FY2009 budget, requesting for the PKO account an additional $60 million, to fund U.S. assistance to international efforts to monitor and maintain peace in Somalia and Democratic Republic of Congo. This brings the FY2009 PKO request to $307,200,000. In February 2008, the President also requested authority to pay up to 27.1% of the cost of any U.N. peacekeeping operation assessments received from calendar year 2005 through calendar year The Administration noted that the U.S.-assessed share of U.N. peacekeeping accounts has been reduced in recent years from well over 27 percent for assessments made in 2005 to just under 26 percent for assessments received in 2008 and The Administration request was made in order to allow for the payment of peacekeeping assessments at the rates assessed by the United Nations, including amounts withheld because of the statutory cap limited payments to 25 percent of UN peacekeeping costs from 2005 through On June 30, 2008, the President signed H.R. 2642, the Supplemental Appropriations Act, 2008 (P.L ), which included supplemental funding for U.S. contributions to U.N. peacekeeping accounts in the CIPA account, Department 3 U.S. Department of State. Congressional Budget Justification. Fiscal Year 2009, p Found at [

8 CRS-4 of State, for both FY2008 and FY2009 and supplemental funding for the PKO account for FY2009. Subchapter A, of Chapter 4 Department of State and Foreign Operations is entitled Supplemental Appropriations for Fiscal Year Under the CIPA account, $373,708,000 is appropriated, to remain available until September 30, 2009, of which $333,600,000 shall be for the U.N.-African Union Hybrid Mission in Darfur (UNAMID). The $40,108,000 difference is to meet unmet fiscal year 2008 assessed dues for the international peacekeeping missions to countries such as the Democratic Republic of the Congo, Cote d Ivoire, Haiti, Liberia, and Sudan. 4 Subchapter B, of Chapter 4 is entitled Bridge Fund Supplemental Appropriations for Fiscal Year Congress appropriated an additional $150,500,000 for the CIPA account, which shall become available on October 1, 2008, and remain available through September 30, 2009; and an additional amount for the PKO account of $95,000,000, which shall become available on October 1, 2008, and remain available through September 30, This additional PKO money would not be used to finance U.S. contributions to U.N. peacekeeping assessed accounts. 5 On July 18, 2008, the Senate Appropriations Committee recommended $1,650,000,000 in FY2009 appropriations to the CIPA account, an amount that is $153,000,000 above the President s request. This is in addition to the $150,500,000 provided in Bridge Funding for FY2009 in P.L The committee noted that the budget request for U.S. assessed contributions to international peacekeeping missions assumed a reduction in the cost of every mission below the fiscal year 2008 operating level... The Committee recognizes the significant contribution to international peace and stability provided by U.N. peacekeeping activities, without the participation of U.S. troops. The Committee does not support OMB s practice of under-funding peacekeeping activities and relying on limited supplemental funds to support only a few missions. 6 The committee bill included language, as requested by the President, to adjust the authorized level of U.S. assessments for peacekeeping activities for calendar year 2009 and prior years from 25 percent to 27.1 percent, consistent with the level set in fiscal year 2008 (Public Law ). The committee expected that future budget requests shall include sufficient funding to support such authorization. 7 The committee report also included the following: The Committee directs the Department of State to seek to ensure that all peacekeepers, civilian police, and other United Nations personnel being trained and equipped with funds contributed by the United States in preparation for deployment as part of peacekeeping missions, receive proper training to prevent 4 Congressional Record [daily edition], June 19, 2008: H Congressional Record [daily edition], June 19, 2008: H S.Rept , pages S.Rept , pages

9 CRS-5 and respond to violence against women and girls. The Secretary of State should work aggressively with the United Nations to ensure that individuals who are found to have engaged in exploitation or violence against women are held accountable, including prosecution in their home countries. 8 On July 16, 2008, the State and Foreign Operations Subcommittee of the House Appropriations Committee approved its FY2009 bill, which will be considered by the full committee. The text of a bill is not yet available. Fiscal Year 2008 On February 5, 2007, the Bush Administration requested, in its FY2008 budget, $1,107,000,000 to pay U.S. assessed contributions to U.N. peacekeeping operations in the State Department s Contributions to International Peacekeeping Activities (CIPA) account. The CIPA request included $34,181,000 for the two war crimes tribunals (Yugoslavia and Rwanda) that are not peacekeeping operations. 9 Bush also requested $221,200,000 in voluntary contributions for the FY2008 Peacekeeping Operations (PKO) account to finance, inter alia, U.S. contributions to the Multilateral Force and Observers (MFO), a non-u.n. operation, and other U.S. support of regional and international peacekeeping efforts. The MFO implements and monitors the provisions of the Egyptian-Israeli peace treaty of 1979 and its 1981 protocol, in the Sinai. On June 18, 2007, the House Appropriations Committee recommended $1,302,000,000 for the CIPA account and $293,200,000 for the PKO account. 10 It included language setting the peacekeeping assessment cap at 27.1% for calendar year The committee, in recommending funding for CIPA at $195 million above the Administration s request, expressed concern [t]hat the Administration has not adequately planned for funding International Peacekeeping activities. Committee analysis has concluded that the Administration s budget request in fiscal year 2008 for CIPA is a cut of 3 percent below the fiscal year 2007 level and that all missions except UNMIS are taking a reduction in the President s request. The Committee continues to inquire as to the rationale used by the Secretary of State when requesting $28,275,000 below the fiscal year 2007 level in the CIPA account. The Committee is concerned that peacekeeping missions could be adversely affected if the requested fiscal year 2008 funding level is enacted. The Committee notes that in the last year the Administration has voted for: a seven-fold expansion of the UN s peacekeeping mission in Lebanon; the expansion of the UN s peacekeeping mission in Darfur; 8 S.Rept , page Each of these tribunals is funded from both the CIPA account and the Contributions to International Organizations (CIO) account. See CRS Report RL33611, United Nations System Funding: Congressional Issues, by Marjorie Ann Browne and Kennon H. Nakamura. 10 H.Rept , p , and H.R. 2764, as reported, sec. 684.

10 CRS-6 reauthorization of the UN s peacekeeping mission in Haiti; and a renewed peacekeeping mission in East Timor. 12 The committee noted that some non-governmental organizations and outside experts have estimated that the U.S. debt to U.N. peacekeeping operations might reach $1 billion if funding is not increased and if additional projected peacekeeping operations are created. The Committee is concerned that these debts are preventing the UN from paying the countries that provide troops for UN peacekeeping missions and will likely significantly impact India, Pakistan, and Bangladesh. The House, in passing H.R. 2764, Department of State, Foreign Operations, and Related Programs Appropriations Act, 2008, on June 22, 2007, approved the committee s recommendations for funding and for the peacekeeping assessment cap. On July 10, 2007, the Senate Appropriations Committee reported H.R. 2764, recommending $1,352,000,000 for the CIPA account and $273,200,000 for the PKO account. 13 The committee recommendation for CIPA is $245 million above the President s request but, according to the committee, still $66,275,000 below projected current requirements for U.S. contributions to peacekeeping. The committee continued, the request was unrealistic considering the significant contribution to peace and stability provided by U.N. peacekeeping activities, without the participation of U.S. troops... The Committee does not support the administration s practice of under-funding peacekeeping activities and relying on limited supplemental funds. The committee included language to adjust the authorized level of U.S. assessments for peacekeeping activities for fiscal year 2008 from 25 percent to 27.1 percent. (Section 113 of the reported bill stipulated for assessments made during calendar year 2008, 27.1 percent. ) On September 6, 2007, the Senate passed H.R. 2764, providing the committee-recommended funding for the CIPA and PKO accounts and the increased peacekeeping assessment cap for CY2008. On October 22, 2007, President Bush sent to Congress amendments to his FY2008 budget request in a FY2008 Supplemental that included an additional $723,600,000 for the CIPA account to remain available until September 30, This amount, designated as emergency requirements, would fund the U.S. share of the start-up, infrastructure, and operating costs of the new U.N. peacekeeping operation in Darfur (UNAMID). On December 19, 2007, Congress passed and sent to the President H.R. 2764, the Consolidated Appropriations Act, 2008, Division J of which provided funding for the Department of State, Foreign Operations, and Related Programs Act, The President signed the bill on December 26, 2007 (P. L ). The bill included across-the-board rescissions. The estimated figure after application of the rescission is provided in brackets. The bill provided $1,700,500,000 [$1,690,517,000] for CIPA, of which $468,000,000 was designated emergency, for U.S. contributions to UNAMID. The President had, for FY2008, requested a total 12 H.Rept , p S.Rept , p and

11 CRS-7 of $1,830,600,000 for the CIPA account, $723,600,000 of which was designated an emergency requirement. Congress included, for the PKO account, $263,230,000 [$261,381,000], including not less than $25 million for the U.S. contribution to the MFO in the Sinai. This also included $35 million designated as emergency. The President had requested $221,200,000 in funds for the PKO account for FY Fiscal Year 2007 Supplemental The President also requested on February 5, 2007, FY2007 supplemental funding for CIPA and for PKO. The CIPA supplemental request of $200 million was to pay U.S. contributions for unforeseen U.N. peacekeeping expenses: $184 million for the expanded force in Lebanon (UNIFIL) and $16 million for the U.N. operation in Timor Leste (UNMIT). The PKO supplemental request of $278 million was to support peacekeeping efforts in Darfur through the African Union Mission in Sudan (AMIS) $150 million and support peacekeeping needs in Chad and Somalia $128 million. The request stipulated that up to $128 million of the total may be transferred to CIPA, for assessed costs of U.N. peacekeeping operations. The requested transfer authority would provide the flexibility to fund either a United Nations peacekeeping mission to Chad and Somalia or to support the efforts of African regional security organizations such as the African Union. 15 On March 23, 2007, the House passed H.R. 1591, Making Emergency Supplemental Appropriations for FY2007, which provided $288,000,000 for the CIPA account and $225,000,000 for the PKO account, but without the authority to transfer up to $128 million from the PKO to the CIPA account. 16 On March 22, 2007, the Senate Appropriations Committee reported S. 965, recommending $200 million for the CIPA account and $323 million for the PKO account and including the authority to transfer up to $128 million to the CIPA account. The PKO section also included a requirement that not less than $45 million shall be made available for assistance for Liberia, for security sector reform. 17 On March 29, 2007, the Senate passed its amendment to H.R. 1591, with these reported provisions on the CIPA and PKO accounts unchanged. On April 24, 2007, a conference report on H.R was filed, providing $288 million for the CIPA account and $230 million for PKO, of which $40 million would be available for Liberia. There was no transfer authority language. H.R was cleared for the White House on April 26, 2007, and, on May 1, was vetoed by the President because of Iraq-related language. Action to override the veto failed on May 2, The FY2008 Emergency Supplemental request did not include additional funds for the PKO account. 15 The Budget for Fiscal Year 2008; Appendix volume, p H.Rept , pp , The CIPA account included $184 million for UNIFIL, $16 million for UNMIT, and $88 million for a potential Chad mission. The PKO account included $40 million for Somalia, $150 million for the AU operation in Sudan (AMIS), and $35 million for security sector reform in Liberia. 17 S.Rept and S. 965, p. 37,

12 CRS-8 On May 25, 2007, Congress sent to the President H.R. 2206, a FY2007 emergency supplemental appropriations bill, which the President signed the same day (P.L ). This bill, cited as the U.S. Troop Readiness, Veterans Care, Katrina Recovery, and Iraq Accountability Appropriations Act, 2007, included $283,000,000 for CIPA, to remain available until September 30, 2008; $190,000,000 for PKO, to remain available until September 30, 2008; and $40,000,000 for PKO, to remain available until September 30, 2008, provided that these funds shall be made available, notwithstanding section 660 of the Foreign Assistance Act of 1961, for assistance for Liberia for security sector reform. 18 H.R referred to the joint explanatory statement in the conference report on H.R (H.Rept ) for directives and other information for expenditure of these funds. Thus, for CIPA, the conferees specified $184 million for UNIFIL (Lebanon), $16 million for the U.N. Mission in Timor Leste, and $88 million for a potential operation in Chad. If funds are not obligated for a U.N. mission in Chad by August 15, 2007, the conferees asked the State Department to consult with the appropriations committees on the funding needs for other priority missions within CIPA. It should be noted that H.R provided $288 million for CIPA, whereas H.R provided $283 mission for CIPA. H.R provided funds for the PKO account in two separate sections that together totaled the amount provided in H.R Fiscal Year 2007 On February 6, 2006, the Bush Administration had requested, in its FY2007 budget, $1,135,327,000 to pay U.S. assessed contributions to U.N. peacekeeping operations in the State Department s Contributions to International Peacekeeping Activities (CIPA) account. The CIPA request included $44,303,000 for the two war crimes tribunals (Yugoslavia and Rwanda) that are not peacekeeping operations. Bush also requested $200,500,000 in voluntary contributions for the FY2007 Peacekeeping Operations (PKO) account under the Foreign Operations Act. This account would finance the U.S. contribution to the Multilateral Force and Observers in the Sinai (MFO), a non-u.n. peacekeeping operation, and U.S. support of regional and international peacekeeping efforts in Africa, Asia, and Europe. On June 9, 2006, the House, in H.R. 5522, the Foreign Operations Act, proposed $170 million in the FY2007 PKO account. On June 20, 2006, the House, in the State Department Appropriations Act, 2007 (H.R. 5672), agreed to the requested $1,135,327,000 for the CIPA account. This was $113,052,000 over the amount provided for FY2006, in regular appropriations. On the same day, the Senate Appropriations Committee recommended, in H.R. 5522, appropriations for the State Department and for Foreign Operations, the amount requested for CIPA and $97,925,000 for the PKO account. 19 The Senate did not act on this bill in the 109 th Congress. 18 For further background, see CRS Report RL33185, Liberia s Post-War Recovery: Key Issues and Developments, by Nicolas Cook. 19 S.Rept

13 CRS-9 On February 15, 2007, the President signed H.J.Res. 20, the Revised Continuing Appropriations Resolution, 2007, which amended the Continuing Appropriations Resolution 2007 (P. L , division B), as amended by P.L and P.L , to extend through September 30, P.L included specific figures for the CIPA account ($1,135,275,00) and the PKO account ($223,250,000), of which not less than $50 million should be provided for peacekeeping operations in Sudan. U.N. Peacekeeping: Funding Assessed Contributions FY2007-FY2009 Table 1 shows FY2007 allocations, the FY2008 request and appropriation estimates, and the FY2009 request. (Table 5 shows FY1988-FY2006 data.) Table 1. U.N. Peacekeeping-Assessed Contributions FY2007 Allocations and FY2008 and FY2009 Requests (in millions of $) Operation FY2007 Allocations FY2008 Request FY2008 Estimates FY2009 Request UNDOF (Israel-Syria) UNIFIL (Lebanon) a MINURSO (W.Sahara) UNMIK (Kosovo) UNFICYP (Cyprus) UNOMIG (Georgia) UNMIT (E. Timor) b MONUC (Congo) UNMEE (Ethiopia/Eritrea) UNMIL (Liberia) ONUB (Burundi) UNMIS (Sudan) c UNOCI (Cote d Ivoire) MINUSTAH (Haiti) UNAMID (Darfur) MINURCAT (Chad) h Subtotals 1, d 1, , i 1, War crimes tribunals Supplemental e g j TOTALS 1, f 1, , k 1, a. Includes $184 million from the U.S. Troop Readiness, Veterans Care, Katrina Recovery, and Iraq Accountability Appropriations Act, 2007 (P.L ), hereafter referred to as the FY2007 Supplemental. b. Includes $16 million from FY2007 Supplemental.

14 CRS-10 c. Includes $129 million from FY2006 Supplemental. d. Includes $129 million from the FY2006 Supplemental and $200 million from the FY2007 Supplemental. e. Amount appropriated in FY2007 Supplemental: $184 million for UNIFIL; $16 million for UNMIT; and $83 million for potential operation in Chad.. f. FY2007 Actual of $1, includes emergency supplemental of $283 million. g. On October 22, 2007, the President requested $723.6 million for CIPA in FY2008 emergency supplemental funding for U.S. assessed contributions to UNAMID. h. From FY2007 Supplemental (P.L ). i. Includes $83 million from FY2007 Supplemental. j. Congress included $468 in emergency funds in the Consolidated Appropriations Act, 2008, Division J: Department of State, Foreign Operations, and Related Programs Act, 2008 (P.L ). k. The total appropriated includes application of $ million in adjustment (rescissions). The Peacekeeping Assessment Cap United States U.N. peacekeeping requests were funded during FY1997 through FY2001 at an assessment level of 25%, in accordance with Section 404 (b)(2), P.L , rather than at the level assessed by the United Nations. The scale of assessments for U.N. peacekeeping is based on a modification of the U.N. regular budget scale, with the five permanent U.N. Security Council members assessed at a higher level than they are for the U.N. regular budget. Since 1992, U.S. policy was to seek a U.N. General Assembly reduction of the U.S. peacekeeping assessment to 25%, meaning an increase of other countries assessments. Since October 1, 1995, based on congressional requirements, U.S. peacekeeping payments had been limited to 25%. This limit, or cap, on U.S. payments added to U.S. arrearages for U.N. peacekeeping accounts. Table 2. U.N. Peacekeeping Assessment Levels for the United States, Calendar Years U.N. Year Assessment % (30.4%) % (31.7%) % (31.7%) % (31.2%) % (30.9%) Recognized by U.S. 30.4%; Oct. 1: 25% Year U.N. Assessment 30.4% % (28.13%) 30.4% % (27.35%) 30.4% % (26.93%) % (26.69%) 25% % (26.5%) Recognized by U.S. 25% // 28.15% a 27.90% 27.40% 27.40% 27.1%

15 U.N. Year Assessment % (30.9%) % (30.5%) % (30.4%) % (30.3%) Recognized by U.S. CRS-11 Year U.N. Assessment 25% % (26.7%) 25% % (26.08%) 25% % (25.9%) 25% % (25.9%) Recognized by U.S. 25% 25% 27.1% TBD a. The cap changed during See paragraph below. In December 2000, the U.N. General Assembly reduced the U.S. regular budget assessment level to 22%, effective January 1, 2001, and, in effect, reduced the U.S. assessment for peacekeeping contributions progressively to 25%. Then U.N. Ambassador Richard Holbrooke in testimony in January 2001, stated that The U.S. rate will continue to progressively decline, and we expect that it will reach 25% by roughly 2006 or In response, Congress passed S. 248, which amended the 1999 enacted legislation authorizing payment of U.S. arrears on its contributions to the United Nations, once certain conditions had been met. One of the conditions required Assembly reduction of the U.S. peacekeeping assessment level to 25%. S. 248 (P.L , signed October 5, 2001) changed that condition figure to 28.15%. In 2002, in Section 402, of P.L , Congress raised the 25% cap for peacekeeping payments that had been set by P.L to a range of 28.15% for Calendar Year (CY) 2001 to 27.4% for CY2003 and CY2004. Table 1 under Recognized by U.S. reflects these changes. This would enable U.S. peacekeeping assessments to be paid in full. Section 411 of Division B of P.L , signed December 8, 2004, continued the increased cap for assessments made during CY2005 to 27.1%. However, FY2006 legislation did not include a provision on the cap, which returned to 25% for assessments made in CY2006. On March 10, 2005, the Senate Committee on Foreign Relations had reported S. 600, the Foreign Affairs Authorization Act, Fiscal Years 2006 and Section 401, Limitation on the United States share of assessments for United Nations peacekeeping operations, would have set a permanent ceiling of 27.1% on U.S. payments to U.N. peacekeeping accounts (S.Rept , p ). During Senate floor consideration of S. 600, Committee chair Senator Richard Lugar proposed an amendment (S.Amdt. 266) to strike this provision from the bill. He maintained that passing a permanent ceiling of 27.1% at that time might reduce U.S. leverage in negotiating toward the U.S. goal of 25% as an assessment rate for its U.N. peacekeeping contributions. Senator 20 Holbrooke, Richard C. Permanent Representative of the United States to the United Nations. Prepared Statement, January 9, In U.S. Congress. Senate. Committee on Foreign Relations. A Report on the United Nations Reforms. Hearing, 107 th Congress, 1 st Session, January 9, Washington, DC, U.S. Government Printing Office, (S. Hrg ) p

16 CRS-12 Joseph Biden introduced a second degree amendment (S.Amdt. 286) that would keep the then current rate of 27.1% for the next two calendar years: For assessments made during calendar years 2005, 2006, and 2007, 27.1 percent. This amendment, Senator Biden maintained, would put into place the language the President asked for in his FY2006 budget request. On April 6, 2005, the Senate rejected S.Amdt. 286 and agreed to S.Amdt. 266, dropping section 401, that would have instituted a permanent change to 27.1%. The Senate did not complete action on S On December 13, 2005, Senator Biden introduced S that would set the cap for assessments made for CY2005 and CY2006 at 27.1%. The President s February 6, 2006 budget request for FY2007 included legislative language that would set the cap at 27.1% for assessments made during CYs 2005, 2006, 2007, and On June 22, 2006, the Senate passed S. 2766, the Defense Authorization Act for FY2007, including an amendment by Senator Biden that would set the cap for U.S. contributions at 27.10% for assessments made for U.N. peacekeeping operations for CYs 2005, 2006, and This provision was dropped during conference consideration of H.R. 5122, the John Warner National Defense Authorization Act for Fiscal Year 2007, that was presented to the President on October 5, 2006, for his signature. 21 Thus, at the start of the 110 th Congress, the cap on funds available for U.S. assessed contributions to U.N. peacekeeping accounts remained at 25%. On January 25, 2007, Senator Biden introduced S. 392, to ensure payment of United States assessments for United Nations peacekeeping operations for the 2005 through 2008 time period. It would amend the Foreign Relations Authorization Act, Fiscal Years 1994 and 1995 (P.L ) to add For assessments made during calendar years 2005, 2006, 2007, and 2008, 27.1 percent. President Bush s FY2008 budget request, released February 5, 2007, included identical legislative language. Both provisions were to be added to Section 404 (b)(2)(b) of P.L , as amended. Senator Biden s bill also contained a conforming amendment that Section 411 of the Department of State and Related Agency Appropriations Act, 2005 (title IV of division B of Public Law ; 22 U.S.C. 287e note) is repealed. On July 16, 2007, the Senate Committee on Foreign Relations reported S. 392, without amendment favorably. 22 The committee report noted that the legislation is designed to allow the United States to fully pay its dues to U.N. peacekeeping operations, pay arrears that have accumulated since January 2006, and ensure that no additional arrears accrue in 2007 and The Congressional Budget Office, in its cost estimate noted, Based on information from the State Department, CBO estimates that by raising the cap, the bill would allow the department to pay the U.N. an additional $157 million $65 million for 2006 arrears, $48 million for the 2007 arrears, and $44 million for 2008 arrears (the department s request for 2008, based on the 21 U.S. Congress. House. Conference Report to Accompany H.R H.Rept (109 th Congress, 2nd session), p S.Rept

17 CRS-13 statutory cap of 25 percent, has not yet been appropriated.) CBO estimates that the department would pay the U.N. $126 million in 2008 and $31 million in 2009 under the bill, assuming appropriation of the necessary amounts and that outlays will follow historical spending or receipts. 23 The Senate did not act on S The Omnibus Appropriations Act, Division J, included language setting the peacekeeping assessment cap at 27.1% for assessments made in The President, in his FY2009 budget, requested authority to pay up to 27.1% of the cost of any U.N. peacekeeping operation assessments received from calendar year 2005 through calendar year This request was supported by the Senate Appropriations Committee in S. 3288, Department of State, Foreign Operations, and Related Programs Appropriations Bill, Notifications to Congress Since 1997, pursuant to a provision in the State Department Appropriations Act, 1997, P.L (Omnibus Consolidated Appropriations Act, 1997), Congress has required the Secretary of State to notify it 15 days before U.S. support of a U.N. Security Council resolution setting up a new or expanding a current peacekeeping operation. The notification is to include the estimated cost and length of the mission, the vital national interest that will be served, and the planned exit strategy. A reprogramming request, indicating the source of funding for the operation, is also required. Tradition has sometimes resulted in a committee or subcommittee chairman placing a hold on the proposed reallocation in the reprogramming request, if it is not acceptable to him or her. In addition, the Committees on Appropriations and other appropriate committees are to be notified that the United Nations has acted to prevent U.N. employees, contractor personnel, and peacekeeping forces serving in any U.N. peacekeeping mission from trafficking in persons, exploiting victims of trafficking, or committing acts of illegal sexual exploitation, and to hold accountable individuals who engage in such acts while participating in the peacekeeping mission. 24 An older notification requirement is that funds shall be available for peacekeeping expenses only upon a certification by the Secretary of State to the appropriate committees that American manufacturers and suppliers are being given opportunities to provide equipment, services, and material for U.N. peacekeeping activities equal to those being given to foreign manufacturers and suppliers. 23 Ibid., p Added in Department of State Appropriations Act, 2006, Title IV of P.L (H.R. 2862), November 22, 2005 [119 Stat. 2323]. This report is sent to Congress on a semiannual basis.

18 CRS-14 Basic Information United Nations peacekeeping might be defined as the placement of military personnel or forces in a country or countries to perform basically non-military functions in an impartial manner. These functions might include supervision of a cessation of hostilities agreement or truce, observation or presence, interposition between opposing forces as a buffer force, maintenance and patrol of a border, or removal of arms from the area. The U.N. Charter did not specifically provide for peacekeeping operations. This term was devised in 1956, with the creation of the U.N. Emergency Force as an interposition force between Israel and Egypt. 25 The U.N. Security Council normally establishes peacekeeping operations in keeping with certain basic principles, which include agreement and continuing support by the Security Council; agreement by the parties to the conflict and consent of the host government(s); unrestricted access and freedom of movement by the operation within the countries of operation and within the parameters of its mandate; provision of personnel on a voluntary basis by U.N. members; and noninterference by the operation and its participants in the internal affairs of the host government. The conditions under which armed force may be used to carry out the mandate or for other purposes is set forth in the Council resolution or in Council approval of the rules of engagement or concept of operations. U.N. peacekeeping operations may take the form of either peacekeeping forces, such as the U.N. Force in Cyprus (UNFICYP), the U.N. Operation in the Congo [in the 1960s], or the U.N. Interim Force in Lebanon (UNIFIL), or observer missions, such as the U.N. Iran-Iraq Military Observer Mission (UNIIMOG), the U.N. Observer Group in Central America (ONUCA), or the U.N. Truce Supervision Organization in Palestine (UNTSO). The distinctions between observer missions and peacekeeping forces are found in the mandate or function of the operation, the numbers and types of personnel used, and whether the personnel are armed. Usually, peacekeeping forces are larger in the numbers of personnel, equipment, and cost than observer missions and are lightly armed rather than unarmed, as are observers. When the U.N. Security Council establishes a U.N.-conducted peacekeeping operation, its resolution also specifies how the operation will be funded. In most instances, this is by a special assessed account to be created by the U.N. General Assembly. Under the U.N. Charter, the General Assembly approves the budget and expenses of the organization; this includes U.N. peacekeeping operations. Each operation has a separate budget that is financed from a separate assessed account. In 1994, the Assembly decided that the financial period for each operation would be changed from January through December to July 1 to June 30. As U.N. peacekeeping operations grew in number and complexity, the Assembly found it required a longer 25 See discussion of U.N. peacekeeping operations and concepts in Simma, Bruno. The Charter of the United Nations; a Commentary; Second Edition. New York, Oxford University Press, Vol. I, pages Simma places this discussion between Chapters VI and VII of the U.N. Charter. U.N. peacekeeping operations have often been referred to as Chapter VI and ½ operations. See also [ faq/] for a 28-page brochure of questions and answers on U.N. peacekeeping.

19 CRS-15 period of time to consider the budgets of each operation and other agenda items associated with United Nations peacekeeping. 26 Since 1948, the United Nations has established 63 peacekeeping operations, 16 of which are currently active. A review of the data in Appendix B, U.N. Peacekeeping Operations: Numbers Created Annually, , shows a pattern of increase in the creation of operations that escalated during the mid-1990s. This increase placed a strain on the then-not-well-developed capacities of the U.N. Secretariat to support larger numbers of operations and personnel and also led to what some have called donor fatigue on the part of actual and potential troop contributing countries. The resulting hesitation or reluctance to rapidly provide personnel for U.N. peacekeeping operations created by the U.N. Security Council continues today. Current United Nations statistics on U.N. peacekeeping often refer to higher numbers of operations and personnel than are provided in the paragraph above. For example, the February 2007 report of the Secretary-General on implementation of recommendations of the Special Committee on Peacekeeping Operations, in referring to a surge in United Nations peacekeeping, noted that as 2006 drew to a close, almost 100,000 men and women were deployed in 18 peace operations around the world, of which approximately 82,000 were troops, police, and military observers provided by contributing countries. Those figures are set to increase further in 2007, with the completion of deployments currently under way... and the prospect of new United Nations peace operations being established, whether United Nations peacekeeping missions or special political missions. He continued, In parallel, the Department of Peacekeeping Operations has increased its administrative and logistics support to special political missions managed by the Department of Political Affairs, and is currently supporting 15 such field offices. More recently, it has become increasingly engaged in assisting regional actors to develop their peacekeeping capabilities, in particular providing substantial support to the African Union Mission in the Sudan (AMIS). 27 The use of the term peace operations in this context can be tracked back to the Brahimi Panel report (see Brahimi Panel Report [2000], below). Peace operations might be seen and identified within the overall context of the Charter role of the U.N. Security Council in the maintenance of international peace and security (see Article 24 of the Charter), with U.N. peacekeeping being only one element or component of the array of responses the Council might employ. U.N. peace operations, as defined 26 See How is UN peacekeeping financed? and Peacekeeping budgets at [ Link to Assembly Resolution 49/233 A (December 22, 1994) is available under Peacekeeping budgets. A new session of the Assembly starts in September of each year and meets daily through mid to late December. Most of the issues on the Assembly s agenda are considered and acted on during this threemonth period, usually referred to as the main part of the session. Peacekeeping items are, for the most part, considered the following May. 27 United Nations. Implementation of the recommendations of the Special Committee on Peacekeeping Operations. Report of the Secretary-General. New York, United Nations, U.N. document A/61/668, p. 3.

20 CRS-16 in the Brahimi Report, entail three principal activities: conflict prevention and peacemaking; peacekeeping; and peace-building. 28 The numbers used when referring to the numbers of personnel involved in peace operations as compared with the numbers of personnel involved in U.N. peacekeeping operations can derive from two different aspects: (1) U.N. peacekeeping operations data generally tracks the numbers of uniformed personnel provided by U.N. member states and does not include the numbers of civilians in those operations, either recruited locally or those internationally recruited. These increasingly larger numbers of civilians are included in data tracking the numbers of personnel in peace operations. (2) As reflected in the data, the number of currently deployed peacekeeping operations, 17, as of June 30, 2008, differs from the number of peace operations, 20, which includes three peace operations UNAMA, in Afghanistan, and the two peacebuilding missions in Sierra Leone and Burundi: UNIOSIL and BINUB. 29 U.S. Provision of Personnel Section 7 of the U.N. Participation Act (UNPA) of 1945, as amended (P.L ), authorized the President to detail up to 1,000 members of the U.S. armed forces to the United Nations in a noncombatant capacity. 30 Throughout U.N. history, the United States has provided various goods and services, including logistics, and has detailed its military to U.N. peacekeeping tasks, but in small numbers. Before 1990, the major category of forces provided by the United States were the individual military officers participating as observers in the UNTSO. The President has also used the authority in section 628 of the Foreign Assistance Act (FAA) of 1961 to provide U.S. armed forces personnel to U.N. peacekeeping operations. Under this section, such personnel may be detailed or sent to provide technical, scientific or professional advice or service to any international organization. For example, as of November 30, 1995, an estimated 3,254 U.S. military personnel served under U.N. control in eight operations. This included participation, under section 7 of the UNPA, of an estimated 748 and participation of an estimated 2,506 under section 628 of the FAA. The breakout of figures under each section for the forces in Macedonia (UNPREDEP) and Haiti (UNMIH) are based on the percentage in strength (the figure in brackets) as of September 6, See Table U.N. document A/55/305-S/2000/809, p. 2, para UNAMA is U.N. Assistance Mission in Afghanistan; UNIOSIL is the U.N. Integrated Office in Sierra Leone, and BINUB is the U.N. Integrated Office in Burundi. See United Nations Peacekeeping Operations Fact Sheet at [ bnote.htm]. 30 See CRS Report RL31120, Peacekeeping: Military Command and Control Issues, by Edward F. Bruner and Nina M. Serafino, for discussion of foreign command issues.

21 CRS-17 Table 3. U.S. Military Personnel Under U.N. Control as of November 30, 1995 Operation Sec. 7, UNPA Sec. 628, FAA Total UNTSO (Middle East) UNIKOM (Iraq-Kuwait) MINURSO (Western Sahara) UNCRO (Croatia) UNPREDEP (Macedonia) 248 [42%] 324 [58%] 559 UNPROFOR (Bosnia Herzegovina) UNMIH (Haiti) 453 [20%] 1,814 [80%] 2,267 UNOMIG (Georgia) TOTAL 748 2,506 3,254 By the end of April 1996, with the U.N. Mission in Haiti (UNMIH) coming to an end, the number of U.S. military personnel serving in U.N. peacekeeping operations had fallen to 712. As of June 30, 2008, an estimated 258 U.S. personnel served under U.N. control in eight operations. Other than the civilian police in four operations, these were U.S. military personnel. See Table 4. The United States currently contracts with outside firms to provide U.S. civilian police, either active duty on a leave of absence, former, or retired. They are hired for a year at a time and paid by the contractor. 31 These contracts are financed from Foreign Operations Act accounts. 32 A total of 88,517 uniformed personnel from 119 countries served in 17 U.N. peacekeeping operations. 31 See [ for information and links. 32 This is now the Department of State, Foreign Operations, and Related Programs Appropriations Act.